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Pubs in Tower Hamlets – an Evidence Base Study

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Pubs in Tower Hamlets – an Evidence Base Study Pubs in Tower Hamlets – An Evidence Base Study April 2017 Contents Executive Summary ................................................................................................. 1 Introduction .............................................................................................................. 3 Purpose of this study ......................................................................................... 3 Overview of pub closures .................................................................................. 3 Overview of policy and legislative framework .................................................... 4 Research Aim and Methodology ............................................................................. 6 Research methodology to be used and data to be collected ............................. 6 Introduction to the study areas .......................................................................... 7 Pub categorisations ........................................................................................... 8 Background to Pubs and their Definition as Community Facilities ..................... 8 History and origins of the public house .............................................................. 9 The contemporary public house ........................................................................ 9 The approach to public houses today within the planning system ................... 10 Supporting amendments to the planning system ............................................. 11 Relevent planning legislation ........................................................................... 11 Summary ......................................................................................................... 12 Findings, Analysis & Evaluation ........................................................................... 13 The decline of pubs – the extent of the problem .............................................. 13 Has the decline worsened in recent years? ..................................................... 13 Vacant pubs and former pub sites ................................................................... 15 Relevant policy in the study areas ................................................................... 15 Change of use – Permitted Development ........................................................ 16 Change of use – Full applications ................................................................... 18 Heritage ........................................................................................................... 19 Application of policy ......................................................................................... 19 Population & cultural factors ............................................................................ 21 Community value ............................................................................................. 23 The effect on communities of pub closure ....................................................... 24 Creation of new pubs....................................................................................... 25 Diversification of pubs ..................................................................................... 26 Conclusions & Recommendations ....................................................................... 27 Overview ......................................................................................................... 27 Recommendations .......................................................................................... 28 Bibliography ........................................................................................................... 32 Appendix 1 – Map ................................................................................................... 39 Appendix 2 – Definitions of pub categorisations ..................................................... 40 Appendix 3 –Subsequent use of closed pubs within the study areas by pub type .. 42 Appendix 4 – Pubs within Tower Hamlets ............................................................... 49 Executive Summary This paper has been produced to inform the Council’s Local Plan. Much concern has been raised about the loss of pubs within Tower Hamlets and this paper sets out how the Council might provide additional support to pubs through strengthened planning policy. It analyses the reasons for pub closures in recent years, explores the extent to which the planning system has had a role in the decline of pubs and compares Tower Hamlets to other areas of London and England to ascertain whether Tower Hamlets has faced particular challenge in comparison to other areas. By categorising pubs according to their characteristics and function, the study was able to assess the relative community value of pubs and investigate whether particular types had been more prone to loss than others. The categorisations devised were: Community local Edge of centre community Town centre pub Isolated rural pub Isolated urban pub Pub-restaurant Special interest pub The study found that overall the loss of pubs in Tower Hamlets was significantly greater than other study areas; there was a net loss of 57% between 2000 and 2016 compared to 44.3% across all study areas. It was the scale of losses in Tower Hamlets though that inflated the overall average; with Tower Hamlets excluded the average dropped to 26.1%. In total 161 pubs in Tower Hamlets closed over the study period, with three new ones opening. It was found that two thirds of pubs which closed were ‘community locals’, in other words those which provided most community benefit in terms of offering a space for people to meet and come together. The study also found that the loss of pubs has also had particular impacts on communities of shared interest, for example the LGBT community, and impacted the availability of space for live music and other performing arts at ‘grass routes’ level. The study found that a number of closures across the study areas, almost 30%, were as a result of permitted development. It therefore recommended that the Council lobby for the removal of permitted development rights on pubs, consider introducing Article 4 directions removing permitted development from pubs and promote the nomination of pubs as Assets of Community Value (ACV). Most changes of use, particularly within Tower Hamlets, were subject to full applications though so the study recommends that Local Plan policy be strengthened. The study found evidence of applicants undermining the viability of pubs and manipulating policy requirements, for example by being seen to ‘re- provide’ pubs through redevelopment but not providing sufficient floorspace to make them viable. These spaces were often subsequently converted to other 1 uses, mostly residential. The Recommendations section of the report sets out how the Council could strengthen policy and sets out reasoned justifications. The study also recommends a revised approach to new pubs in Tower Hamlets. The current Local Plan directs new facilities to town centres, but this means that where a community loses a valued pub it is challenging to create a new one on an alternative site. Therefore where proposed pubs are local in nature and scale, policies should support proposals outside of town centres. 2 Introduction Purpose of this study There has been much concern in recent years at the rate of closures of public houses (pubs) not just within Tower Hamlets but across London and the rest of England. In mid-2016 the national closure figure stood at around twenty-nine each week, according to figures released by the Campaign for Real Ale (CAMRA). This was identical to 2015 figures, with London seeing particularly high levels of closure. Within Tower Hamlets, the loss of pubs has been frequently cited as a concern by local residents. The Council’s “Our Borough, Our Plan: A new Local Plan first steps” Local Plan engagement consultation in early 2016 drew numerous written comments in support of the proposal to bring forward pub protection policies, as well as verbal support at public events and informal comment through social media. There have been high-profile closures and campaigns in the borough alongside much media coverage. Across London and elsewhere, planning authorities have been bringing forward specific and enhanced policies protecting pubs from unnecessary loss. This is backed by provisions within the National Planning Policy Framework (NPPF) (2012) and the London Plan (2015) which support pubs as community facilities alongside a growing number of research papers which highlight the social value of pubs as community facilities. Therefore not only is the issue of pub protection a key issue for local people, but also of great contemporary relevance to planning practice. This paper has therefore been drafted to inform the Council’s approach to protecting pubs and to provide evidence to robustly support any Local Plan policy that might be brought forward. Overview of pub closures There are a number of general reasons put forward by various sources as contributing to the decline of pubs, including: Changing drinking patterns including lower alcohol consumption per capita, an increase in population who do not drink for cultural and religious reasons, and increased home consumption Competition from large retailers who are able to undercut on price Competition from ‘town centre’ bars attracting younger people away from ‘traditional’ community and neighbourhood pubs Modern attitudes towards,
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